"If there is nobody there when a bitch starts birthing, if she has problems, she will die, or the puppies will die. I find it utterly disgusting to say that nobody needs to be in residency."

The animal welfare advocate said the recommendations supported also didn't touch on the number of breeding animals a facility could have.

"That is free range for the likes of some puppy farmers who have 300-plus puppies," Ms Scrivener said.

"This was a golden opportunity and the government has let it pass."

She said the government also did not support council development control terms that would ensure council approvals met the animal welfare code.

"How could they not support that?" she said. "That is the basis of what all this is all about."

Mrs Scrivener said the inquiry was a way to placate animal activists, but it had not worked.

"I think it was an attempt to placate the very fast-growing animal welfare and rescue groups who are fed up with a lack of action, motherhood statements and throwaway lines and they think this will make them go away and shut up," she said.